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LAX041M10
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3 November 2017
2489 Words
1
“This is a humanitarian crisis and it needs a humanitarian response,” said Senator Barbara
US-Mexico border in 2014.1 By September that year more children had been apprehended
than in the whole fiscal year of 2013. In addition to the minors from Mexico who already
came in great numbers prior to 2014, there was a huge influx of children coming from
Honduras, El Salvador and Guatemala. As a result the Migration Policy Institute reported,
“this breakdown represents a significant shift;” it is a dramatic surge that “has deep roots and
no simple solutions.”2 The media and the public used crisis discourse to pressure the Obama
immigration, outlining the steps the Administration would take.3 Obama addressed the nation
again on July 9th, saying, “We need to … address the humanitarian situation on the border.”4
humanitarian emergency, like the situation of the unaccompanied migrating minors, the
change is urgent, moral and crucial. In this case, the surge in unaccompanied minors
migrating from Central America shows how crisis discourse in humanitarian situations
stimulates an ‘immediate presence,’ in which “time contracts and one inhabits the present as
intimately as possible.”6 In this paper, I argue that this ‘immediate presence’ suspends both
1
Richard Cowan, “Waves of immigrant minors present crisis for Obama, Congress,” Reuters, May 28, 2014,
https://www.reuters.com/article/us-usa-immigration-children/waves-of-immigrant-minors-present-crisis-for-
obama-congress-idUSKBN0E814T20140528.
2
Muzaffar Chishti and Faye Hipsman, “Dramatic Surge in the Arrival of Unaccompanied Children Has Deep
Roots and No Simple Solutions,” Migration Policy Institute, June 13, 2014,
https://www.migrationpolicy.org/article/dramatic-surge-arrival-unaccompanied-children-has-deep-roots-and-no-
simple-solutions.
3
“Fact Sheet: Unaccompanied Children from Central America,” Office of the Press Secretary, June 20, 2014,
https://obamawhitehouse.archives.gov/the-press-office/2014/06/20/fact-sheet-unaccompanied-children-central-
america.
4
Barack Obama, “Statement by the President on Immigration,” The White House, Office of the Press Secretary,
July 19, 2014, https://obamawhitehouse.archives.gov/the-press-office/2014/07/09/statement-president-
immigration.
5
Matan Oram, Modernity and Crisis in the Thought of Michel Foucault: The Totality of Reason (Routledge:
New York and London, 2017): 67.
6
Peter Redfield, “Doctors, Borders, and Life in Crisis,” Peace Research Abstracts Journal 43, no. 1 (2006): 32.
2
the past and the future, because of the urgent need to address the situation now. Building upon
Roitman’s statement that crisis discourse “enables a blind spot,” this paper shows that people
tend to forget asking “why crisis now?”7 Focusing on “what went wrong?” nobody looked at
the history that may have caused the unaccompanied minor migration. Moreover, once the
numbers slightly decreased, the humanitarian crisis frame seemed inapplicable. Consequently,
This essay is structured as follows. First, it outlines theories on crisis discourse and,
more specifically, on humanitarian crisis discourse. The theories of Roitman and Redfield will
be taken as a starting point. Second, it will analyse the situation in 2014, as well as the
adoption and consequences of the crisis narrative. To then discuss the effects of the
‘immediate presence’ in crisis discourse; how it omits asking questions about both the past
Theory of crisis discourse provides important insights into the use of the word ‘crisis’
and its effects. Roitman is in particular known for her critique on crisis discourse. In her
essay, with the self-explanatory title ‘Crisis,’ she follows Koselleck’s investigation in the
origins of the word.8 Koselleck’s conclusion is that “the concept of crisis, which once had the
power to pose unavoidable, harsh and non-negotiable alternatives, has been transformed to fit
the uncertainties of whatever might be favoured at a given moment.”9 Roitman continues this
line of thinking and eventually defines crisis as “a judgement [that] has been made by which
the present is deemed to be at odds with an alternative and more normal situation.”10 Another
prominent argument in her essay is that when certain situations are framed in crisis
terminology, “the grounds for knowledge of crisis are neither questioned or made explicit.”11
7
Janet Roitman, “Crisis,” Political Concepts: A Critical Lexicon, https://www.politicalconcepts.org/roitman-
crisis/.
8
Ibid.
9
Reinhart Koselleck, “Crisis,” Journal of the History of Ideas 67, no. 2 (2006): 399.
10
Janet Roitman. “Anti-Crisis,” Risk & Research (2015): 4.
11
Janet Roitman, Anti-Crisis (North Carolina: Duke University Press, 2013): 569.
3
In the eyes of Roitman, this poses problems. Crisis discourse enables a blind spot, because
people solely ask, “what went wrong?” and forget to ask other pressing questions like “why
crisis now?”12 The latter question will prove to be interesting in the light of the
However, the 2014 situation was not merely called a crisis; it was a humanitarian
crisis. A thoughtful article by Redfield discusses the use of the ‘humanitarian crisis’ frame by
humanitarian organisations. Redfield wrote that a humanitarian emergency “is both a potential
historical event and a historical deferment; a rupture that marks time indelibly yet stands
outside it in a state of exception.” This eventually puts great weight on the acting
Administration. According to Redfield, “not acting takes on new significance … if one has a
Migration institutes, newspapers and eventually the Obama Administration framed the
2014 situation as a crisis. Articles depicted images of migrating children with titles as “Surge
“Immigration Crisis: 1,000 Migrant Children Headed to Arizona Shelter.”14 The high
numbers presented in the articles were affirmed by the Migration Policy Institute in June. The
Administration had failed to anticipate to increasing amounts of migrating children and did
not possess sufficient resources. It was unable to detain and house all 58.000 children, so
children were placed in military bases and border patrol stations.15 Consequently, the media
12
Janet Roitman, “Crisis,” Political Concepts: A Critical Lexicon, https://www.politicalconcepts.org/roitman-
crisis/.
13
Peter Redfield, “Doctors, Borders, and Life in Crisis,” Peace Research Abstracts Journal 43, no. 1 (2006):
337.
14
Cindy Carcamo, “Immigration Crisis: 1,000 Migrant Children Headed to Arizona Shelter,” Los Angeles Times,
June 7, 2014, http://www.latimes.com/nation/nationnow/la-na-nn-ff-immigration-migrant-children-20140607-
story.html; Kirki Semple, “Surge in Child Migrants Reaches New York, Overwhelming Advocates,” New York
Times, June 17, 2014, https://www.nytimes.com/2014/06/18/nyregion/immigration-child-migrant-surge-in-New-
York-City.html
15
“Five Fast Facts about Unaccompanied Children and the 2014 Border Crisis and Three Ways You Can Make a
Difference,” CFJC Northwestern Law Clinic,
4
pressured the Obama Administration to take measures to protect the children. The
Administration initiated field hearings named “Crisis on the Texas Border: Surge of
Unaccompanied Minors.”16 During the hearings, testimonies of Judges and Bishops explicitly
describe the situation as a humanitarian crisis.17 Furthermore, the Hidalgo County Judge
humanized the situation when she described how a frightened, hungry, thirsty 11-year old boy
wandered alone and died less than a quarter mile away from help.18
These groups naming the situation a humanitarian crisis are, according to Roitman,
“both demanding a moment of truth and demarcating an opportunity to revert to the proper
course of history.”19 The Obama Administration was morally obliged to respond to the
situation.”20 As a result, multiple programs were initiated. On June 20th Obama announced
new partnerships with the Central American countries. The Administration would provide
money for programs, which had to improve citizen security and prevent crime and violence.
Additionally, the Administration increased the enforcement by ICE and started campaigns to
help migrants understand the dangers of smugglers and the requirements for asylum and
DACA.21 Another important solution was initiated in November that year; the Central
American Minor Refugee Program (CAM). This was an in-country processing policy, which
would discourage minors to make the hazardous journey from their home country to the US
by themselves. CAM made it possible for children to apply for refugee status while residing
http://www.law.northwestern.edu/legalclinic/cfjc/documents/CFJC%20Newsletter%20Article%20final.pdf,
accessed April 11, 2018.
16
Field Hearing on Crisis on the Texas Border: Surge of Unaccompanied Minors, US House Committee on
Homeland Security, July 3, 2014, McAllen (TX),
http://docs.house.gov/Committee/Calendar/ByEvent.aspx?EventID=102439.
17
Ibid.
18
Garcia, Ramon. “Statement” in Field Hearing on Crisis on the Texas Border: Surge of Unaccompanied
Minors, US House Committee on Homeland Security, July 3, 2014, McAllen (TX),
http://docs.house.gov/Committee/Calendar/ByEvent.aspx?EventID=102439.
19
Janet Roitman, “Crisis,” Political Concepts: A Critical Lexicon, https://www.politicalconcepts.org/roitman-
crisis/.
20
Peter Redfield, “Doctors, Borders, and Life in Crisis,” Peace Research Abstracts Journal 43, no. 1 (2006):
337.
21
“Fact Sheet: Unaccompanied Children from Central America,” Office of the Press Secretary, June 20, 2014,
https://obamawhitehouse.archives.gov/the-press-office/2014/06/20/fact-sheet-unaccompanied-children-central-
america.
5
in their home country. The program is an example of the consequences of crisis discourse,
because it was initiated by the executive branch. Roitman had already pointed towards this
However, Roitman critiques this direct initiating of policies, because “throughout the
narratives of struggle and proliferating values, of uncertain futures and contradictions, crisis
itself is never challenged.”23 The question must be asked “Why crisis now?”24 Researching
the situation shows that even though the influx of child migrants was a new phenomenon to
the US, Central American migration was not. The history of Central America explains the
current instabilities of the countries, and shows how the US was involved. Immigration to the
US began in the 1980s, because the Central America countries were haunted by civil wars,
political and economic instabilities. Moreover, immigrants were accepted in greater numbers
since the Carter Administration adopted the 1980 Refugee Act.25 This eventually turned out
be a ground upon which unaccompanied minors could be admitted into the US.26 By 2015, the
Central American population had grown nearly tenfold by 2015. This shows that the
unaccompanied minor crisis is a part of a greater Central American migration crisis, although
this was not often mentioned. It also proves Koselleck’s statement that “when two crises cross
each other … the stronger consumes the weaker.”27 Nonetheless, the question still rises why
all these people wanted to flee their home countries. Therefore, this paper will discuss the
history of the Central American countries relevant to migration, focussing on the three new
migrating countries that caused the crisis: El Salvador, Guatemala and Honduras.
22
Janet Roitman, Anti-Crisis (North Carolina: Duke University Press, 2013): 569.
23
Ibid., 64.
24
Janet Roitman, “Crisis,” Political Concepts: A Critical Lexicon, https://www.politicalconcepts.org/roitman-
crisis/.
25
Kenneth D. Brill, “The Endless Debate: Refugees Law and Policy and the 1980 Refugee Act,” Cleveland State
Law Review 32, no. 1 (1983): 119.
26
Daniel J. Steinbock, “The Admission of Unaccompanied Children into the United States,” Yale Law & Policy
Review 7, no. 1 (1989): 138.
27
Reinhart Koselleck, “Crisis,” Journal of the History of Ideas 67, no. 2 (2006): 387.
6
During the 1980s El Salvador was struggling to fight the upcoming leftist Farabundo
Marti National Liberation Front (FMLN) in the civil war.28 Consequently, they became the
main receiver of US foreign aid in Latin America. The US supported the Ávila of the
conservative Nationalist Republican Alliance (ARENA), which in turn backed the US in Iraq
and helped implementing a free trade agreement with Central America and the Dominican
Republic. Politicians and military leaders often describe the war as “an example of a
repression of civilians supporting the left. In 1992 a peace agreement was eventually signed,
shortly after the end of the Cold War. Afterwards, the US focused on inaugurating a
democratic government and reforming the economy, but they were not able to address the
growing inequality, violence and corruption.30 Currently, the opposition between the FMLN
and ARENA, which dates back to the civil war, is still the main cause for economic
In Guatemala tensions cumulated in 1982 when Rios Montt came to power. However,
the civil war had begun long before. In the 1960s the US already equipped and trained
Guatemalan security forces for the civil war. Similar to El Salvador, these forces brutally
supressed leftist civilians. From 1982-1983 Montt acted as a dictator and was later convicted
for crimes against humanity and genocide.32 It is still disputed whether the US helped to
finance his crimes. The Central American Program Director at the Washington Office for
Latin America (WOLA) said, “Direct U.S. military aid was suspended during the Carter
Administration, but then restored by the Reagan Administration, whose Cold War worldview
28
Clare R. Seelke and Peter J. Meyer, “El Salvador: Political, Economic, and Social Conditions and U.S.
Relations,” Congressional Research Service, June 8, 2009: Summary.
29
Mark Peceny and William Stanley. "Counterinsurgency in El Salvador." Politics & Society 38, no. 1 (2010):
68.
30
Clare R. Seelke and Peter J. Meyer, “El Salvador: Political, Economic, and Social Conditions and U.S.
Relations,” Congressional Research Service, June 8, 2009: Summary.
31
Clare R. Seelke, “El Salvador: Background and U.S. Relations.” Congressional Research Service, March 18,
2017: 4.
32
Maureen Taft-Morales, “Guatemala: Political, Security, and SocioEconomic Conditions and U.S. Relations,”
Congressional Research Service, August 7, 2014: Summary.
7
clearly prioritized the fight against insurgents and their civilian supporters over respect for
human rights.”33 While a democratic government was established in 1986, the violent civil
war did not end before 1996. Many improvements have been made, but criminality, drug
trafficking, corruption and excessive poverty stand in the way of social and political
development.34 Clearly, Guatemala was still recovering from the civil war and unable to
In Honduras the situation was different from El Salvador and Guatemala, because
there was no civil war on display. Nonetheless, the militarily controlled government pursued
tough anti-communist politics, violating many human rights.35 This military dictatorship
ended in 1982 and was replaced by a civilian-led government. Meanwhile, during the 1980s
Honduras proved worthy to the US as a staging area “for U.S.-supported excursions into
Nicaragua by the Contra forces attempting to overthrow the leftist Sandinista government.”36
dependent on the world economy, especially on the US. Consequently, the country got hit
hard by the financial crisis of 2008. A year later, in 2009, the country experienced another
state of emergency after the military removed and exiled president Zelaya to protect the
constitution. The Obama Administration ordered diplomatic and economic sanctions. In 2010
a new president was inaugurated, but the mess was not yet cleaned up.37 A program associate
at the WOLA stated, “After the 2009 coup, the government essentially stopped functioning in
rural areas where organized crime took hold and cocaine shipments started arriving in larger
numbers. This prompted even more US anti-drug assistance. Then, as institutions hollowed
33
Santiago Wills, “Did Reagan Finance Genocide in Guatemala?” ABC News, May 14, 2013,
http://abcnews.go.com/ABC_Univision/News/ronald-reagan-finance-genocide-guatemala/story?id=19179627.
34
Maureen Taft-Morales, “Guatemala: Political, Security, and SocioEconomic Conditions and U.S. Relations,”
Congressional Research Service, August 7, 2014: 1.
35
Peter J. Meyer, “Honduran-U.S. Relations,” Congressional Research Service, July 25, 2012: 1.
36
Ibid., 18.
37
Ibid., 19.
8
out and became corrupted, gang activity increased and the United States got a wave of
In short, the history of Central American instability is related to current violence and
extreme poverty and inequalities. These are also the three main reasons for children to
migrate alone, as found by UNICEF. A fourth reason for travelling to the US is family
reunification, which in turn is linked to the situation in Central America in the last decades.39
When addressing the humanitarian situation, Obama did not take the history into account. He
only mentioned that what “has really caused a spike is the significant security challenges in
these Central American countries themselves and the fact that you’ve got smugglers.”40
Additionally, it was not commented on in the Field Hearings and it was almost never
discussed in newspaper articles. In 2014, humanitarian crisis discourse thus enabled a “blind
spot for the production of knowledge,” since there was a sole focus on the present.41
This focus also posed another challenge. The presentation of a humanitarian situation
demanded immediate action, obscuring any long-term evaluations. When the numbers of
unaccompanied minors crossing the border seemed to diminish in the first half of 2015, the
public came to believe that the crisis situation was over. However, numbers have been rising
again since the second half of 2015. In fiscal year 2017 the number of apprehensions were
only one per cent lower than in ‘crisis’ year 2014.42 Even though the humanitarian situation
was not resolved, the situation became ‘normal’ in 2015 and the public displayed no acute
desire for action. This public disregard can be explained by the indifference of the media after
38
Sarah Kinosian, “Crisis of Honduras Democracy Has Roots in US Tacit Support for 2009 Coup,” The
Guardian, December 7, 2017, https://www.theguardian.com/world/2017/dec/07/crisis-of-honduras-democracy-
has-roots-in-us-tacit-support-for-2009-coup.
39
Patrick Moser, “Broken Dreams: Central American Children’s Dangerous Journey to the United States,”
UNICEF Child Alert, august 2016.
40
Barack Obama, “Statement by the President on Immigration,” The White House, Office of the Press Secretary,
July 19, 2014, https://obamawhitehouse.archives.gov/the-press-office/2014/07/09/statement-president-
immigration.
41
Janet Roitman, “Crisis,” Political Concepts: A Critical Lexicon, https://www.politicalconcepts.org/roitman-
crisis/.
42
“Southwest Border Migration FY2018,” US Customs and Border Protection, April 4, 2018,
https://www.cbp.gov/newsroom/stats/sw-border-migration.
9
their databases. The result (see figure 1) signifies the attention span of media during the
humanitarian situation. The number of hits on the search-term increased from 34 in 2013 to
1153 in 2014, whereas in 2017 the number barely reached 400. This is all in accordance with
Roitman’s argument that “crisis narratives signify what counts as an event and thus establish a
temporality upon which one can act.”43 2017 was not signified as such an event and thus
In all, the 2014 situation shows that humanitarian crisis discourse prioritizes the
present over the past and the future. The label of ‘humanitarian crisis’ on the unaccompanied
minor surge led to the belief that 2014 was a truly exceptional year and that there was an
alternative, preferred situation possible. Since no attention was given to the situation after
2014, it looked like the preferred situation was established. However, in 2017 the numbers
and situations of unaccompanied minors crossing the border were similar to those in 2014.
The difference was that in 2014 the country could not handle the number of minors crossing
the border, while in 2017 they had more capacity to detain and house the children. It would
have been more fitting to call the situation an ‘apprehension crisis.’ Moreover, the label also
overstates the importance of some events, while obscuring others. Nobody had asked “Why
now?” even though this question might have better explained the surge in 2014. The 1980s
Central American crisis, in-state democratic crises and the financial crisis of 2008, all
partially caused the movement of unaccompanied children. Not many researchers have
discussed this interrelation of crises, and neither did the public. To actually explain and/or
address the root causes of the flow of unaccompanied minors, dominant narratives of crisis
must be challenged and researched. Especially since humanitarian crisis discourse puts
pressure on the present, fails to foresee the future and overlooks occurrences in the old days.
43
Marion Werner, Global Displacements: The Making of Uneven Development in the Caribbean (Hoboken:
Wiley-Blackwell, 2015): 164.
10
Figure 1
1200
1000
New York Daily News
800
Washington Post
minors"
Chicago Tribune
600
Houston Chronicle
400 Tampa Bay Times
Total
200
0
2013 2014 2015 2016 2017 2018
Year
11
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immigration-migrant-children-20140607-story.html.
Cowan, Richard. “Waves of immigrant minors present crisis for Obama, Congress.” Reuters,
immigrant-minors-present-crisis-for-obama-congress-idUSKBN0E814T20140528.
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12
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Koselleck, Reinhart. “Crisis.” Journal of the History of Ideas 67, no. 2 (2006): 357-400
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Seelke, Clare R. and Peter J. Meyer. “El Salvador: Political, Economic, and Social
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https://www.nytimes.com/2014/06/18/nyregion/immigration-child-migrant-surge-in-New-
York-City.html.
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https://www.cbp.gov/newsroom/stats/sw-border-migration.
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http://abcnews.go.com/ABC_Univision/News/ronald-reagan-finance-genocide-
guatemala/story?id=19179627.